U.S. Commission on Ocean Policy - Joint Ocean Commission Initiative

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CHAPTER 1RECOGNIZING OCEAN ASSETSAND CHALLENGESAmerica’s oceans and coasts are priceless assets. Indispensable to life itself, theyalso contribute significantly to our prosperity and overall quality of life. Toooften, however, we take these gifts for granted, underestimating their value andignoring our impact on them. Then our use of the oceans becomes abuse, andthe productive capacity of our marine resources is diminished.The nation needs a comprehensive national ocean policy, implementedthrough an integrated and coordinated management structure thatresults in greater participation and collaboration in decision making.By rising to the challenge and addressing the many activities thatare degrading the oceans and coasts, America can protect themarine environment while creating jobs, increasing revenues,enhancing security, protecting cultural heritage, expanding trade,and ensuring ample supplies of energy, minerals, healthy food,and life-saving drugs.Evaluating the Vast Wealth ofU.S. Oceans and CoastsAmerica is a nation surrounded by and reliant on the oceans.From the fisherman in Maine, to the homemaker in Oregon, tothe businessperson in Miami, and even the farmer in Iowa, everyAmerican influences and is influenced by the sea. Our grocery stores arestocked with fish, our docks bustle with waterborne cargo, and millions oftourists visit our coastal communities each year, creating jobs and pumpingdollars into our economy. Born of the ocean are clouds that bring life-sustainingrain to our fields and reservoirs, microscopic plankton that generate the oxygen webreathe, energy resources that fuel industry and sustain our standard of living, and adiversity of biological species that is unmatched on land. Careful stewardship of our oceanand coastal resources is imperative to conserve and enhance the financial, ecological, andaesthetic benefits we have come to rely upon and enjoy.Economic and Employment ValueAmerica’s oceans and coasts are big business. The United States has jurisdiction over 3.4million square nautical miles of ocean territory in its exclusive economic zone—larger30 A N O CEAN B LUEPRINT FOR THE 21ST C ENTURY
than the combined land area of all fifty states. Millions of families depend on paychecksearned directly or indirectly from the value of the sea, including the magnetic pull of thenation’s coasts and beaches. However, our understanding of the full economic value ofthese resources is far from complete. In contrast to sectors like agriculture on which thefederal government spends more than $100 million a year for economic research, we donot make a serious effort to analyze and quantify the material contributions of our oceansand coasts. Standard government data are not designed to measure the complex oceaneconomy. They also ignore the intangible values associated with healthy ecosystems,including clean water, safe seafood, healthy habitats, and desirable living and recreationalenvironments. This lack of basic information has prevented Americans from fully understandingand appreciating the economic importanceof our oceans and coasts.To better inform the public and policy makers,the U.S. <strong>Commission</strong> on Ocean Policy partnered withthe National Ocean Economics Project to produce aneconomic study, “Living Near... And Making A LivingFrom... The Nation’s Coasts And Oceans” (AppendixC). This study pulls together information from a widerange of sources and clearly shows that our oceansand coasts are among our nation’s most vital economicassets. In so doing, it distinguishes betweenthe ocean economy, the portion of the economy thatrelies directly on ocean attributes, and the coastaleconomy, which includes all economic activity thattakes place on or near the coast, whether or not thatactivity has a direct link to the sea.In 2000, the ocean economy contributed morethan $117 billion to American prosperity and supportedwell over two million jobs. Roughly threequartersof the jobs and half the economic value wereproduced by ocean-related tourism and recreation(Figure 1.1). For comparison, ocean-related employmentwas almost 1 1 ⁄2 times larger than agriculturalemployment in 2000, and total economic output was2 1 ⁄2 times larger than that of the farm sector.The level of overall economic activity withincoastal areas is even higher (Figure 1.2). More than$1 trillion, or one-tenth, of the nation’s annual grossdomestic product (GDP) is generated withinnearshore areas, the relatively narrow strip of landimmediately adjacent to the coast. Looking at allFigure 1.1 The Value of the OceansJobs by Sector2,500,0002,000,0001,500,0001,000,000500,000coastal watershed counties, the contribution swells to over $4.5 trillion, half of thenation’s GDP. (For definitions of the different coastal zones, see Box 1.1.) The contributionto employment is equally impressive, with sixteen million jobs in nearshore areas andsixty million in coastal watershed counties. (See Appendix C for additional details.)Even these remarkable numbers do not fully capture the economic contributions ofoceans and coastal industries. More than thirteen million jobs are related to trade transportedby the network of inland waterways and ports that support U.S. waterborne commerce.1,2 The oceans provide tremendous value to our national economy. Annually, thenation’s ports handle more than $700 billion in goods, 3 and the cruise industry and itspassengers account for $12 billion in spending. 4 The commercial fishing industry’s totalvalue exceeds $28 billion annually, 5 with the recreational saltwater fishing industry valuedat around $20 billion, 6 and the annual U.S. retail trade in ornamental fish worth anotherNumber of Jobs0■ Tourism & Recreation■ Transportation■ Ship & Boat BuildingGross DomesticProduct by SectorBillions of Dollars$140$120$100$80$60$40$20$0■ Living Resources■ Minerals■ ConstructionThe ocean economy includes activities that rely directly onocean attributes or that take place on or under the ocean.In 2000, Tourism and Recreation was the largest sector in theocean economy, providing approximately 1.6 million jobs.Source: Living Near… and Making a Living From… the Nation’s Coastsand Oceans, Appendix C.C HAPTER 1: RECOGNIZING O CEAN A SSETS AND C HALLENGES 31
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FINAL REPORTAN OCEAN BLUEPRINTFOR T
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THE UNITED STATES IS AN OCEAN NATIO
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1120 20TH STREET, NW • SUITE 200
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U.S. COMMISSION ON OCEAN POLICYChai
Page 17 and 18: Shirley A. Pomponi, Ph.D.President
Page 19 and 20: ACKNOWLEDGEMENTSAn effort of this m
Page 22 and 23: CHAPTER 3SETTING THE NATION’S SIG
Page 24 and 25: PART IVLIVING ON THE EDGE: ECONOMIC
Page 26 and 27: Periodic Review and Modification...
Page 28 and 29: Expanding Research and Education ..
Page 30 and 31: CHAPTER 26ACHIEVING A SUSTAINED, IN
Page 32 and 33: Index to the Recommendations ......
Page 34 and 35: LIST OF FIGURES AND TABLESFigure 1.
Page 36 and 37: LIST OF BOXESBox 1.1 Defining Coast
Page 38 and 39: PHOTOGRAPH IDENTIFICATIONAND CREDIT
Page 40 and 41: The Value of the Oceans and CoastsA
Page 42 and 43: The message from both experts and t
Page 44 and 45: Guiding PrinciplesThe Commi
Page 46 and 47: appropriate national policies, and
Page 48 and 49: Based on an improved understanding
Page 50 and 51: Figure ES.5 Many Different Platform
Page 52 and 53: Figure ES.6 U.S. Students Fall Behi
Page 54 and 55: ciated with coastal population and
Page 56 and 57: To ensure good coordination, the In
Page 58 and 59: liferation of federal and state pro
Page 60 and 61: Preserving Coral Reefs and Other Co
Page 62 and 63: pation of all ocean-related federal
Page 64: also produce revenues in time, and
Page 70 and 71: Figure 1.2 The Value of the CoastsJ
Page 72 and 73: Box 1.1 Defining Coastal AreasThe c
Page 74 and 75: Figure 1.4 The Shift from Goods to
Page 76 and 77: Box 1.2 The “Fourth Seacoast”
Page 78 and 79: chemicals tend to bind to particles
Page 80 and 81: coastal watershed counties grew by
Page 82 and 83: One of the most immediate phenomena
Page 84 and 85: 30 Fleming, L.E., et al. “The Epi
Page 86 and 87: CHAPTER 2UNDERSTANDING THE PASTTO S
Page 88 and 89: ments. The Navy’s ocean data hold
Page 90 and 91: The legislation was prompted by the
Page 92 and 93: The architects of ocean-related pro
Page 94 and 95: Congress on ocean and coastal issue
Page 96 and 97: Figure 2.1 Invited Panelists Repres
Page 98 and 99: CHAPTER 3SETTING THE NATION’S SIG
Page 100 and 101: USCOP File PhotoThe Commiss
Page 102 and 103: Figure 3.1 Large Marine Ecosystems
Page 104 and 105: damage is also high, managers shoul
Page 106 and 107: Figure 3.2 The Foundations of a New
Page 108 and 109: PRIMER ON OCEAN JURISDICTIONS:DRAWI
Page 110 and 111: The Territorial Sea (0 to 12 Nautic
Page 113 and 114: PART 2BLUEPRINT FOR CHANGE:A NEW NA
Page 115 and 116: Government agencies work on these a
Page 117 and 118: Recommendation 4-1Congress should e
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• reach out to state, territorial
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Figure 4.2 Proposed Structure for C
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References1 National Research Counc
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significant initiative by federal a
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The California Bay-Delta Authority
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Box 5.2 Nature and Functions of Reg
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Box 5.3 Moving Toward Improved Fede
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data collection efforts are essenti
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CHAPTER 6COORDINATING MANAGEMENTIN
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nisms for managing new ocean uses.
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sure that disputes are resolved and
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Reserve System, which is made up of
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Regional and Local StakeholdersPart
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Reviewing Previous Reorganization P
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Box 7.1 Improving Ocean and Coastal
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Box 7.2 Federal Ocean and Coastal A
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Box 7.3 Historical Precedent for Pr
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Table 7.1 (continued) Thirty Years
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PART 3OCEAN STEWARDSHIP:THE IMPORTA
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Ocean StewardshipTo successfully ad
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Therefore, the interaction and invo
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NOPP’s Ocean Research Advisory Pa
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Recommendation 8-4Ocean.ED should d
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Figure 8.2 U.S. Students Fall Behin
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Bridging the Gap between Scientists
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Recommendation 8-8Ocean.ED, working
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creativity that has expanded our un
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Recommendation 8-11Ocean.ED should
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Recommendation 8-14The National Sci
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Box 8.5 What Is Informal Education?
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to reach desired outcomes. While fe
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PART 4L IVING ON THE E DGE:E CONOMI
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Box 9.1 Coastal Activities Are Big
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state and local decision making, so
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• goals—State coastal managemen
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Other Relevant Federal ProgramsIn a
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forward. An applicant can appeal su
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References1 Culliton, T.J. Populati
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Improving Federal Managementof Haza
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Box 10.2 New Orleans at RiskPrior t
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Dave Gatley/FEMA News PhotoHomes bu
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that develop excellent mitigation p
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tal and human disturbances such as
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PhotolinkCoastal habitats provide e
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Restoration efforts have intensifie
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Box 11.2 A Community Habitat Restor
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Although it has shown some success
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Box 12.1 Sediment: Friend or Foe?Se
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Changing Sediment QualityOver the l
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One of the difficulties in undertak
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Beneficial Uses of Dredged Material
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The National Shoreline Management S
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CHAPTER 13SUPPORTING MARINE COMMERC
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Figure 13.1 Ports Are the Primary G
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Harbors, Channels, and WaterwaysThe
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Recommendation 13-2Congress should
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Recommendation 13-5The U.S. Departm
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PART VC LEAR WATERS A HEAD:C OASTAL
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Figure 14.1 Report Card on Regional
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sources, such as industrial facilit
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meet water quality goals. Decisions
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Animal Feeding OperationsMany anima
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nants over land, into streams and g
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Major Nonpoint SourcesThe majority
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USCOP File PhotoUSCOP File PhotoAs
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Expanding Uses of State Revolving F
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Recommendation 14-11The U.S. Enviro
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assisting in the implementation of
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References1 U.S. Environmental Prot
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Box 15.1 Ocean and Coastal Monitori
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EPA’s Environmental Monitoring an
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local, and municipal governments, w
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System DesignSampling protocols are
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Making Data Accessible and UsefulA
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and 75 percent of cargo ships opera
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Although many flag states take thei
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Reducing Vessel PollutionStrengthen
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Voluntary actions can provide a use
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Figure 16.2 The Oil Pollution Act C
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developing new regulatory and non-r
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25 Ibid.26 Center for Environmental
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Box 17.1 What Is an Invasive Specie
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Figure 17.2 Addressing Aquatic Inva
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Global Trade in Marine OrganismsHum
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Recommendation 17-4The National Oce
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tant for ballast water, coordinated
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10 U.S. General Accounting Office.
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each in the entire world. 3 A study
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Research Program), directed by NOAA
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established simply on the basis of
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References1 U.S. Department of Comm
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CHAPTER 19ACHIEVING SUSTAINABLEFISH
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Figure 19.1 Fishery LitigationGrows
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While determining allowable biologi
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Although the Secretary of Commerce
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platforms to expand the scope of da
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Figure 19.3 Migratory Fish RequireC
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majority of RFMC members, may tend
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entrants to a fishery. However, the
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NOAA Photo LibraryEnforcement Partn
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The cost of VMS for fishing vessel
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Ecosystem-based management will als
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Recommendation 19-21The National Ma
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• Major government subsidies aime
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oad regions of the seas, the existi
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References1 U.S. Commission
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fishing line because they are not a
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Reviewing Authorities and Responsib
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The division of endangered species
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PhotolinkHumans love to observe mar
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Although not always caused by human
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Box 20.1 Making a Case for Ecosyste
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9 Flint, E. and Swift, K. eds. Seco
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Figure 21.1 Tropical Waters Are Hom
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appear to be exacerbating other cor
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task force are the U.S. Department
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exploitation by strictly regulating
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CHAPTER 22SETTING A COURSE FORSUSTA
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which are widespread in European sa
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cies, and provides recommendations
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Promoting International Improvement
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tissues of fish and shellfish. When
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Box 23.1 Special Focus on Microbial
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Figure 23.1 Harmful Algal Blooms on
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waters used for drinking and public
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The FDA is responsible for ensuring
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over control of offshore waters. On
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Figure 24.1 Offshore Oil and Gas Le
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Trends in Domestic Offshore Oil and
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Table 24.1 Federal Revenues from Of
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State Involvement in OCS Oil and Ga
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Figure 24.3 Oil Inputs to theNorth
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The estimated amount of natural gas
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Box 24.3 A Mighty Wind Blows in Cap
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commercial recovery, including offs
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PART VIIS CIENCE- BASED D ECISIONS:
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hydrologic, and atmospheric systems
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down about one-half of the highly-r
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ocean temperature can put the healt
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Natural Hazards• basic understand
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ating valuable information, includi
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The National Sea Grant College Prog
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The Value of Ocean ExplorationAbout
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Box 25.2 Primary Federal Agencies t
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Recommendation 25-7The Federal Geog
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CHAPTER 26ACHIEVING A SUSTAINED,INT
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An integrated ocean and coastal obs
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nation’s coastal and marine resou
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One obvious application of the obse
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Recommendation 26-5Ocean.US should
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Recommendation 26-7Ocean.US should
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Box 26.3 The National Weather Servi
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Box 26.4 An Investment with Big Ret
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Islands, and Palau). Examples of ca
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This chapter does not attempt to pr
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Furthermore, while some facilities
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University of Hawaii Marine CenterT
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cost of approximately $5 million; a
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communication capabilities are also
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A Coast Guard cutter and helicopter
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surface temperature measurements, a
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References1 Office of Technology As
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Box 28.1 Data Management Terminolog
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to gather and integrate data from s
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Figure 28.2 The Growing Demand for
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• coordinate federal agency effor
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Recommendation 28-3Ocean.IT should
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PART VIIITHE GLOBAL OCEAN:U.S. PART
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intergovernmental cooperation, and
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the LOS Convention are in the proce
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Table 29.1 (continued) U.S. Partici
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Meeting International ObligationsAl
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Box 29.1 Selected International Bod
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International Ocean Science Program
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Box 29.2 U.S. Involvement in Intern
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CHAPTER 30FUNDING NEEDS ANDPOSSIBLE
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Table 30.1 Summary of Costs Associa
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Table 30.1 (continued) Summary of C
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also require federal support to bec
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Other Ocean and Coastal Management
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Chapter 24 also addresses the poten
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Nevertheless, the need remains for
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• Multiple Use Management: The ma
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Index to the RecommendationsThe fol
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Department of DefenseArmy Corps of
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Recommendations to Regional BodiesR
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• expand education and outreach e
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Chapter 5: Advancing a Regional App
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Chapter 7: Strengthening the Federa
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• expanding the reach of each cen
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Recommendation 8-15The Office of Na
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Recommendation 12-4The National Dre
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Chapter 14: Addressing Coastal Wate
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Recommendation 14-12The U.S. Enviro
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Recommendation 16-6The U.S. Environ
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Recommendation 17-5The National Inv
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• the National Oceanic and Atmosp
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Recommendation 19-21The National Ma
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Chapter 22: Setting a Course for Su
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• work with the National Ocean Co
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• an interagency steering group,
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Chapter 29: Advancing International
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PART XA PPENDICESAPPENDIX AOCEANS A
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One Hundred Sixth CongressOf theUni
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(e) MEETINGS—(1) ADMINISTRATION
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Section 5. Biennial ReportBeginning
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ACRONYMS APPEARING IN THE REPORTAAA
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APPENDIX CLIVING NEAR…AND MAKINGA
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growing much faster. The region nea
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2. DEFINING THE COASTWhat is meant
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almost doubled in population over t
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4. THE COASTAL AND OCEANECONOMY OF
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Figure C.5 Changes in the Ocean Eco
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Figure C.7 Regional Distribution of
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5. THE COASTAL AND OCEANECONOMY BEY
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6. IMPLICATIONSThe changes in the c
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7. THE FUTURE OF UNDERSTANDINGTHE C
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Table C.1 Population Change in the
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Table C.4 Population Growth by Coas
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REFERENCESApogee Research and Resou
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NOTES1 “Counties” in this conte
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SECTION 3OCEAN AND COASTAL-RELATED
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SECTION 1PURPOSE OF THIS GLOSSARYTh
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Council on Environmental QualityCre
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SECTION 3OCEAN AND COASTAL-RELATEDF
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Comprehensive Environmental Respons
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Marine Plastic Pollution Researchan
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Outer Continental Shelf Lands ActTh
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Clean Water Act—National EstuaryP
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Farm Bill Conservation ProgramsCong
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APPENDIX EP ROPOSED S TRUCTURE FORC
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APPENDIX FC ONGRESSIONAL C OMMITTEE
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Table F.1 Congressional Committees
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Committee on Transportation and Inf
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Detailed Costs Associated with Reco
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INDEXacademic/academia, 260aquacult
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federal area-based programs,34, 150
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integration of multiplesources, 234
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programmatic permitting,312-314prot
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coordination and cooperationin, 100
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Department of Educationinitiative,
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invasive species, 252-263aquacultur
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common heritage of mankind,53deep s
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monitoring programs, 228,230, 231,
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jurisdiction issues, 72, 454nationa
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Mid-Atlantic, 276, 278, 288mission,
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single-hull vessel phase-outs,54, 2
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Service, 215, 260Economic Research
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pharmaceuticals and antibiotics,209
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